previous rate, was felt to be unsatisfactory. One of the principal
reasons invoked as justifying the suggestion for a further reduction of
the rate, was that the number of letters actually posted in France was
much less than the number posted in other countries. This circumstance
was attributed partly to the high initial rate, and partly to the fact
that the progression of charge was directly proportionate to the
increase of weight. The initial rate was in point of fact much higher
than the corresponding rate in other countries. The Press often called
attention to the unfavourable position in France in this respect, and
developed public opinion strongly in favour of a reduction.
Representations from business houses, chambers of commerce, and
_conseils g['e]n['e]raux_ were constantly received by Parliament. The
question was frequently advanced in the Legislature, and numerous
suggestions for legislation were put forward by members. Thus, in 1897
M. Chassaing proposed, among other reforms, the reduction of the letter
rate to 10 centimes for each 15 grammes. Although admitting the
desirability of granting the boon, the Budget Commission were unable to
recommend that course on account of the serious effect on the net
revenue which must be anticipated.[209]
In 1900 M. Millerand, Minister for Commerce, Industry, Posts, and
Telegraphs, in a report to the President,[210] recommended a reduction
of the rate on the grounds that it would give satisfaction to the
public, and, at the same time, increase appreciably the number of
letters transmitted by post. He suggested the following scale:--
Letters not exceeding 15 grammes 10 centimes
From 15 to 50 grammes 15 "
Over 50 grammes 5 " for each
50 grammes, or fraction
of 50 grammes
Such a reduction would bring the rate of letter postage down to the
level of the existing rate for postcards; and M. Millerand regarded the
reduction of the latter rate to 5 centimes as an inevitable corollary,
and a reform which might safely be made.[211] Assuming this further
reduction, and applying the proposed reduced rates to the statistics of
existing traffic--ignoring both the probable increase of traffic and the
increase of expenses which would result from the increase of traffic--it
was estimated that the loss to revenue would be--
fr.
On single letters 34,071,584
On heavy letters 4,707,836
On charged letters 404,787
On postcards 2,569,787
----------
Total 41,753,994
The reduction of revenue would be 35.6 per cent. of the total yield.
The reform of 1878 had entailed an increase of working expenses of about
37 millions (5-1/2 millions of capital cost, and 31-1/2 millions of
annual expenses). The increase of traffic from the proposed reform
would, however, be 17 per cent. less than the increase after 1878
(because the reduction was five-fifteenths of the rate instead of
six-fifteenths as in 1878), and the increase of cost would therefore be
proportionately less. Calculated on this basis, the increase was
estimated at 31,037,829 fr. (4,920,000 fr. capital expenses and
26,117,829 fr. annual).
In all, therefore, the reduction would involve a loss of revenue of
41,753,994 fr., and an increase of expense of 31,037,829 fr.--a total
loss of 72,791,823 fr.[212]
In order as far as possible to replace this loss, M. Millerand proposed
to abolish the special tariff for _papiers d'affaires_ and subject them
to letter postage, and also to increase the rates on small packets of
printed matter, other than newspapers and periodicals.[213] The deficit
to be looked for in the first year would then be 16,233,833 fr., and
might be estimated to disappear in the eighth year. The gross revenue
would recover in the third year. The Government was not, however,
prepared to sacrifice the revenue, and the proposal was deferred.
The question still continued to receive attention in the country and in
Parliament.[214] At length, in view of the persistent agitation,[215]
the Government in 1906, on the recommendation of the Budget Commission,
resolved to face the inevitable loss of revenue and make the reduction.
The result was in many ways satisfactory. The number of packets sent at
the letter rate of postage increased very considerably. A large quantity
of traffic was diverted from the cheaper open post to the letter post,
in order to obtain the advantage of secrecy, some large business houses
sending at the letter rate millions of communications which would, under
the old rates, have been sent by the open post. In 1905, before the
reduction, the number of packets passing by post was 2,371,000,000. In
1907 the number had increased to 2,720,000,000, and in 1908 to
2,802,000,000. The loss of net revenue was nevertheless very great. The
gross revenue was diminished by some 12 millions, and the expenses
increased by 21-1/2 millions. The net revenue fell from 91,750,000 fr.
in 1905 to 59,750,000 fr. in 1906.
The reduction of 1906 placed France in a position of equality with most
other nations as regards the initial rate for letters. Indeed, the
French rate was slightly lower than that in several other countries.
Thus, the equivalent of the German and Austrian initial rates was 12.2
centimes, of the Swedish 13.8 centimes, and of the English 10.5
centimes. But as regards the weight allowed for the initial rate, and
also as regards the rates for heavier letters, the position was still
unsatisfactory. The maximum weight allowed to pass at the initial rate
was 15 grammes, and the rate for a letter of 250 grammes was 1 fr.
70.[216] In Germany the rate for a letter of that weight was 24.4
centimes, in England 26.2 centimes, and in Switzerland 10 centimes.
Attention was therefore now directed to a modification of the scale of
rates for the heavier letters. The Budget Commissions of 1908
recommended the reform.[217] In their view the unfavourable comparison
with other countries in this respect could be justified neither by logic
nor by regard to the interests of the Treasury. Logically, a rate of
postage ought to be proportionate to the cost of the service performed,
and this was far from varying in accordance with the weight of postal
packets.[218]
The number of heavy letters was, moreover, small proportionately, and
the effect on the Treasury of a reduction of rate for such letters would
be slight. Indeed, it was thought an increase of revenue might be
anticipated, since, in addition to the natural increase resulting from
the reduction, there would, as in 1906, be a tendency for many packets
sent by the open post to be sent under the advantage of the closed post.
It was urged that the reduction should be accompanied by certain
modifications in the minor rates, which would lead to a desirable
simplification of rates: the special rate for commercial papers should
be abolished, and the general rate for postcards should be made 5
centimes; the whole of the reforms being carried out at the same time,
in order that the increases might be seen in their proper relation to
the compensating reductions. Otherwise the public might forget the
benefits, and resent the increases. The net loss of revenue was
estimated at 4 million francs.[219]
The law of the 8th April 1910 increased the unit of weight for letters
to 20 grammes. For the heavier letters the rates were: from 20 to 50
grammes, 15 centimes; from 50 to 100 grammes, 20 centimes; and so on,
adding 5 centimes for each 50 grammes or fraction of 50 grammes up to
the maximum weight allowed, viz. I kilogramme. The special rate for
commercial papers over 20 grammes in weight was abolished. The
privileged rate was retained for packets weighing not more than 20
grammes, Parliament refusing to agree to its total abolition.
NOTE.--On the 1st January 1917, as a war measure, the general
letter rate was raised from 10 centimes to 15 centimes.
* * * * *
LETTER POST IN GERMANY[220]
A system of messengers (_Boten-Anstalten_) existed in Brandenburg as
early as the first half of the sixteenth century, and in 1604 a master
of the messengers (_Botenmeister_) was appointed, whose duty was to
control the sending and receiving of all despatches.[221] The
incorporation of Prussia and Cleve in the Mark of Brandenburg rendered
necessary the improvement and extension of the messenger service, and in
1614 the Elector John Sigismund appointed twenty-four messengers, who
were paid at a fixed rate, according to the length of the route
traversed. Thus, for the Strasburg, Cologne, and D[:u]sseldorf routes the
payment was 10 thalers, and for the Cracow, K[:o]nigsberg, and Mainz
routes, 8 thalers. Once a year they were supplied with an outfit of
clothing. When not travelling, they were required to report themselves
every hour to the _Botenmeister_, and to hold themselves in readiness at
all times to set out if necessary without delay. The journeys were made
according to set times, and the messengers, who carried both letters and
parcels, were provided with a way-bill, on which the times of arrival at
and departure from the various points were entered. The
_Boten-Anstalten_ really comprised two kinds of undertakings--the
so-called _Post-boten_ and the _Landkutschen_. The former were the
ordinary messengers; the latter a kind of stage-coach system, which
carried both passengers and merchandise.[222] The rates of charge were
based on the actual length of the journey, and also upon any accidental
circumstance which might have a relation to the question, such as high
general prices.[223]
In 1634 a riding post between C[:o]ln a. d. Spree and Crossen was
established, and shortly afterwards a similar post to Glogau, in order
to provide a means of communication between the Government and the
Swedish Army. For the same purpose in 1635 a daily messenger service
(_Botenpost_) was established from Tangerm[:u]nde to Berlin, and in 1646 a
military post (_Dragonerpost_) was established between Berlin and
Osnabruck, in connection with the conference preceding the signing of
the Treaty of Westphalia.
All these services were for the conveyance of the Court and
Administrative correspondence only. The _Botenmeister_ nevertheless
frequently undertook the conveyance of private letters, for which
special charges were made, and often the messengers themselves
clandestinely carried private letters.
In 1618 the _Botenmeister_ of Berlin established a special messenger
route for the conveyance of private letters (_Ordinari-Boten-Cours_)
from Berlin to Leipzig and Hamburg, and at about the same time the
_Botenmeister_ of K[:o]nigsberg established a similar route to Danzig. In
other large towns messenger services for the conveyance of ordinary
letters were established by private individuals, but these services were
often inefficiently conducted. The messengers followed no fixed route,
and the services were irregular and unsafe. They were at best only
makeshifts.
As the result of a variety of circumstances, the establishment of
regular posts became a necessity in the time of the Great Elector. The
extension of the Brandenburg territory, and the political developments,
rendered it desirable to adopt all possible means for binding together
the entire territory. Regular posts would also contribute to the
national welfare and assist industry and commerce, although there was
little prospect that at the outset they would prove profitable.[224] In
1646 a riding post between K[:o]nigsberg and Danzig was established;
shortly afterwards a post between Berlin and K[:o]nigsberg, and thereafter
others. In 1649 the control of all the posts was definitely assumed by
the Electoral administration.[225]
In general the posts went twice weekly; stages were erected for the
exchange of horses and postilions. At first, postilions were changed
every twelve (German) miles,[226] and horses every four (German) miles.
Later, the stages for the changing of horses were reduced to three
miles. The usual speed of the posts, travelling day and night, was one
mile an hour, and punctuality was insisted on.[227] The journey from
Berlin to K[:o]nigsberg occupied four days, and that from K[:o]nigsberg to
Cleve ten days.[228] There was at first no delivery service, and all
letters must be obtained at the post office, where the people were
consequently in the habit of congregating to await the arrival of the
post.[229] The postage was retained by the Postmaster as the
remuneration for his services. For the actual management and conduct of
the service he drew on the State funds to the extent of some 6,000
thalers annually, and all official despatches were consequently conveyed
free. This charge diminished, however, with the years, and in course of
time the service came to yield a profit to the State. In the
Postmaster's patent granted in 1661 it was provided that a portion of
the proceeds of postage should be accounted for to the State
treasury.[230]
The rates of postage were at first fixed according to ancient custom,
but they were on several occasions reduced. The postage on a letter not
exceeding half an ounce in weight sent from Berlin to Wutzkow, from
Breslau to Wutzkow, or from Berlin to Frankfort, was 2 groschen, and
from Berlin to Magdeburg, 1-1/2 groschen.[231]
With the growth of commerce and the establishment of the travelling post
and parcel post, the service became more and more successful
financially. In 1695 the expenses represented some 50 per cent. of the
gross revenue. By 1712 they had fallen to some 41 per cent. The gross
revenue was at the same time rapidly increasing. The net revenue, which
was, of course, increasing still more rapidly, was in 1695 about 62,000
thalers, and by 1712 had risen to some 137,000 thalers.
The rates of postage were modified in 1699, and again in 1712; but as
the old rates were retained as the basis of both revisions, the charges
remained for fifty years substantially unchanged. A letter from Berlin
to Hamburg now cost 2-1/2 groschen, to Bremen 3 groschen, to Dresden 2
groschen, to Frankfort-on-Main 3 groschen, and so on.
During the next fifty years prices were gradually, but steadily, rising
in Prussia. The Seven Years' War produced a sudden and very considerable
rise in the prices of all agricultural products. And not only did the
purchasing power of money fall owing to the scarcity and high price of
provisions, but its value also decreased through depreciation.[232] The
cost of conducting the postal service rose correspondingly, and the
financial difficulties were increased owing to the falling off of
traffic consequent on the war. At the end of 1761 the King was asked to
agree to a contribution in aid, but assistance was not forthcoming.
Something had to be done; and on the 27th January 1762, in common with
the general increase of taxation, the rates for parcels and for value
letters were increased 100 per cent.; the travelling post rates, which
varied from 3 to 4 groschen per mile, were increased by 1 groschen per
mile; and the fees for guides, which were about 6 groschen per station,
by about 2 groschen per station. The letter rate remained
unchanged.[233]
In the early part of 1766 a new tariff was introduced. The rates for
parcels fixed in 1762 were maintained, and new and higher rates for
letters were introduced. The increase in the general rates varied from
about 15 per cent. to about 50 per cent. The minimum, which for letters
passing between many neighbouring places had formerly been only 6
pfennigs, was increased to 1 groschen.
The raising of the rate led to a large amount of fraud, and caused much
public inconvenience. The revenue did, indeed, increase in the first
year quite appreciably; but in the second and third years, instead of
the normal yearly increase, there was a notable decrease. Complaints
against the new rates were widespread, and it was alleged that the
increased charges embarrassed commerce. In 1770 the rates for heavy
letters, printed matter, and documents were reduced again to those of
1712. The rates had previously been based on a variety of
considerations,[234] but this miscellaneous basis was now put aside and
a uniform system established, the same letter rate being applied
throughout the State.
The coinage edict of 1821, by which the thaler was divided into 30
silver groschen instead of 24 groschen as previously, made necessary an
alteration of the postage charges, and amended rates were established on
the 1st January 1822. No account was taken of a less amount than a
half-groschen, and odd amounts were reckoned at the next half-groschen
above, with the result that in certain cases the rate became higher than
formerly.
A reduction of the rates of postage was in contemplation, but while the
discussions on the proposals were in progress, the State finances became
somewhat straitened. It became necessary to look about for fresh
revenue, and a Commission appointed to consider the question
recommended that more revenue should be obtained from the Post Office.
The Postmaster-General pledged himself to bring up the surplus from
700,000 or 800,000 thalers, where it then stood, to a million, and, if
possible, to 1,200,000 thalers. Accordingly, in 1824 the rates of
postage were revised, and, in general, increased. In many cases the
increase was as much as 20 per cent., and the tariff as a whole was the
highest ever fixed in Prussia. The chief characteristics of this
important change were that letter and parcel rates were reckoned
according to the direct distance (_Luftlinie_) between the post offices,
and not according to the distance by way of the post routes, or the time
occupied on the journey, or any of the other considerations which had
previously entered into the reckoning. All special rates for individual
routes and places were abolished.
The new rates were, for a single letter not exceeding 3/4 loth (3/8
ounce) in weight--
Up to 2 miles 1 silver groschen
From 2 miles to 4 miles 1-1/2 "
" 4 " 7 " 2 "
" 7 " 10 " 2-1/2 "
" 10 " 15 " 3 "
" 15 " 20 " 4 "
" 20 " 30 " 5 "
and for each 10 miles further, 1 silver groschen more.
A map of distances was prepared, and every post office was furnished
with a table compiled from this map, showing the distances between that
office and all other post offices in Prussia, together with the
corresponding rates of postage.[235] Formerly, direct rates of postage
existed only between a limited number of post offices, and letters for
any other places were charged an additional rate (_Binnenporto_) in
respect of the distance not covered by the ordinary rate. This charge
was now abolished. Each post office could calculate the rate to any
other post office by means of its table of rates. There was, however, an
additional charge (_Landporto_) in the case of places at which there was
no post office, but which were situated on the post routes. It was
arranged that letters might be despatched to or from such places so long
as the post-messenger was not thereby delayed on his journey, and for
the forwarding of any such letters to or from the nearest post office
the lowest rate of postage was charged, reckoned as from the nearest
post office. Letters up to 1 ounce in weight were sent by riding post.
Letters exceeding 1 ounce in weight were sent by parcel post
(_Fahrpost_), and were charged the corresponding rate, unless the sender
expressly requested transmission by riding post.
For the longer distances the rates were higher than previously. The rate
for the greatest distance within the Prussian postal territory, which
under the old rates was 18 silver groschen for a single letter--that is,
for a letter up to 3/8 ounce in weight--was now 19 silver groschen. The
reduction was greatest for letters going only short distances. The rate
for the shortest distances was reduced from 1-1/2 silver groschen to 1
silver groschen. But the higher rates applied to letters passing between
the great centres, and these formed the greater part of the whole
number. In addition, the progression of the scale of weights was made
very rapid. From the earliest days of the Post Office in Prussia the
progression of weight had been by the half-ounce, and this had not been
changed even in 1766. The scale was now made--
From 3/8 oz. to 1/2 oz. 1-1/2 times the rate
" 1/2 " 3/4 " twice the rate
" 3/4 " 1 " 2-1/2 times the rate
" 1 " 1-1/4 " 3 "
" 1-1/4 " 1-1/2 " 3-1/2 "
" 1-1/2 " 1-3/4 " 4 "
and so on for each quarter-ounce a half rate more.[236]
The year 1824 was also noteworthy for the experimental establishment in
the district of the Frankfort-on-Oder post office of a rural delivery
system. This was the first step towards the general extension of the
rural delivery throughout Prussia. The experiment was successful, and
the system was extended in the following year. For delivery by the
rural letter-carriers an additional charge was made for each letter,
according to the following scale:--
For distances not exceeding 1-1/2 miles 1 silver groschen
" " " 2 " 2 "
" " " 3 " 2-1/2 "
For the longer distances the rates of 1824 were found to be oppressive
for ordinary letters, and burdensome to commerce and literature.
Financially also the increase was not a success. For 1824, the last year
of the old rates, the surplus was 823,229 thalers, an increase of
100,325 thalers over the surplus of 1823. The surplus for 1825, the
first year of the new rates, was 1,121,616 thalers, an increase of
298,387 thalers over the surplus of 1824. Apparently, therefore, the new
rates had produced an immediate increase of net revenue. This was,
however, not the case. While the actual proceeds of postage in 1824 were
73,152 thalers greater than in 1823, the proceeds of postage in 1825
were only 80,890 thalers greater than in 1824.[237] The increased yield
of postage was therefore quite small. And even this small increase
disappeared in 1826. For that year the yield of postage was only 40,547
thalers greater than in 1825, and in 1827 there was an actual falling
off of 41,942 thalers. The increase of net revenue was therefore
attributable to other causes. Thus, for example, in 1825, by some means
or other, a reduction of no less than 136,160 thalers was effected in
the expenses of the service.
The rates were soon found to need amendment. Changes were made in the
subsidiary rates, the rates for commercial papers, for magazines, etc.,
but the letter rate remained unchanged until 1844, when a considerable
reduction was made. The following rates for a single letter (not
exceeding 3/8 ounce in weight), were established:--
Not exceeding 5 miles 1 silver groschen
From 5 miles to 10 miles 1-1/2 "
" 10 " 15 " 2 "
" 15 " 20 " 2-1/2 "
" 20 " 30 " 3 "
" 30 " 50 " 4 "
" 50 " 100 " 5 "
For each further 100 miles within the
Prussian administration 6 "
These rates were applied to letters, printed matter sent under band, and
letters containing samples of merchandise. It was estimated that this
change would reduce the gross receipts from postage by 700,000 thalers,
and the net revenue for 1845 was estimated at 700,000 thalers instead of
1,400,000 thalers. The actual decrease in 1845 in the gross receipts
from postage was, however, only 302,563 thalers, and the actual falling
off in net revenue only 346,208 thalers. The gross revenue soon
recovered, and in 1847 exceeded that of 1844.[238]
The Prussian administration, while not prepared to introduce complete
uniformity of rate irrespective of distance, were yet desirous of
simplifying the rates, and of removing from them any trace of the fiscal
tradition, so far as this course could be followed without involving
serious sacrifice of net revenue.[239]
In September 1848 the distinction between the letter rate and the rate
for printed matter and documents was abolished, and on the 1st October
1848 the following scale of weights for all letters, publications, etc.,
was introduced, viz.:--
Not exceeding 3/8 oz. 1 rate (i.e. 1 sgr.)
From 3/8 oz. to 1/2 oz. 1-1/2 "
" 1/2 " 3/4 " 2 rates
" 3/4 " 1 " 2-1/2 "
" 1 " 4 " 3 "
" 4 " 8 " 4 "
and over 8 ounces 4 rates, until the charge was less than double parcel
rate.